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Although voters will be asked to authorize as many as seven new casinos not on Indian-owned land, the governor and legislative leaders said on Wednesday that they would enact a law allowing, at least for the next seven years, only four, all located upstate, as part of an effort to revitalize the economies of those long-suffering areas. At least one of the new casinos could be in the Catskills, where several developers have already expressed interest.

If voters approve the constitutional amendment, New York will become the most populous state in the nation with Las Vegas-style casinos. New York already has five upstate casinos on tribal land and nine racetracks with electronic gambling.

A Quinnipiac University poll early this month showed less than a majority — 48 percent — of New York voters favored amending the Constitution to allow expanded casino gambling. Support was even weaker in New York City, a dynamic that poses a potential challenge to supporters of expanded gambling, because the mayoral race is expected to mean higher turnout in the city than in other parts of the state.

“It’s pretty much of a standoff,” said Maurice Carroll, the director of the Quinnipiac University Polling Institute, who added that he thought “the chances of people in the city getting terribly interested in it are slim.”

The bill, introduced late on Tuesday and announced on Wednesday, would also permit 2,000 new video lottery terminals — similar to slot machines — at off-track-betting parlors in Nassau and Suffolk Counties, a plan backed by Dean G. Skelos, the Long Island Republican who shares leadership of the State Senate with the head of a group of breakaway Democrats. The new machines can be authorized by the Legislature without voter approval.

Dennis Poust, a spokesman for the New York State Catholic Conference, said on Wednesday that his group was concerned about the impact on compulsive gamblers, as well as social ills that were “associated with casinos, like crime and prostitution.”

“The Catholic Church does not teach that games of chance are sinful in and of themselves, but can become so if they deprive someone what is necessary to provide for himself or someone else,” Mr. Poust said in an e-mail. “This is the fear we have.”

Moral issues were also hovering over another lingering legislative issue: abortion rights, which Mr. Cuomo had sought to reinforce with a bill that would codify the Supreme Court’s 1973 Roe v. Wade decision into state law.

Late on Tuesday, the governor split his 10-point Women’s Equality Act into 10 stand-alone bills, after previously insisting that all 10 points be included in a single piece of legislation.

The governor called all 10 measures, which also address issues like pay equality and human trafficking, “vitally important.”

“New Yorkers deserve to know where their elected representatives stand on all of them,” he said.

Still, the proposal remains unlikely to pass the Legislature before it adjourns, though the governor and a coalition of women’s groups were still seeking to pressure the State Senate to at least put the measure to a vote on Wednesday.

“There are no more excuses for the Senate to hide behind at this point,” said M. Tracey Brooks, the president of Family Planning Advocates of New York State. “All of the concerns that they have laid out have been addressed. It’s time for a vote of conscience. Does the New York State Senate support women’s equality?”

Republicans and the breakaway Democrats who together control the Senate said that although they supported 9 of the 10 provisions, they would not hold a vote on the undivided bill if it contained the abortion measure. “Our position has not changed,” said Kelly Cummings, a spokeswoman for Senator Skelos.

In the Assembly, which is controlled by Democrats, lawmakers meanwhile still intend to pass the Women’s Equality Act as one piece of legislation, a spokesman said. And the Senate Democratic leader, Andrea Stewart-Cousins of Yonkers, said: “Nothing has changed. The women of New York deserve a vote on all 10 points of the Women’s Equality Agenda.”

The debate over abortion could continue all week. The legislative session was scheduled to end on Thursday, but because of procedural requirements, the casino bill and other measures submitted on Tuesday cannot be voted on until Friday at 12:01 a.m., so the session is expected to be extended at least until Friday.